Upgrading the M4 to a smart motorway – road users’ views May 2019 Upgrading the M4 to a smart motorway – road users’ views

Foreword

pgrading transport networks is welcomed by is encouraging that Highways wants to Uusers. Unfortunately, such investment will put the road user at the heart of its thinking and, generally bring short-term disruption. specifically, to actively seek their views. Users of the between Reading and This initial research, summarised here, are starting to experience such short-term paves the way for to refine pain while the road is upgraded to a four-lane smart its communications and operational activities motorway. Transport Focus is pleased to be working relating to the M4 smart motorway construction with Highways England to apply the knowledge and to provide road users with the best possible and learnings from several major rail improvement experience while these changes take place. projects to the M4 works, including the expertise Transport Focus has acquired in researching Guy Dangerfield users’ awareness and experience of, and attitudes Head of strategy towards, such major upgrade programmes. It Transport Focus

Foreword

ustomer service is one of our key channels, including apps and digital media, Cimperatives and a focus of the M4 team. to provide current updates about the works We continue to make progress to improve the and how they may affect these journeys. customer experience on our network but there’s Evidence shows smart motorways are just clearly more we can do, and the opportunity as safe as traditional motorways. We recognise to work with Transport Focus so closely on the however, that as well as being safe, drivers project, provides better understanding of the want to feel safe and understand how to use customer needs and where we can make the our motorways and, later this year, Highways most difference. England is launching a new campaign to provide We recognise the importance of this advice. communication with our customers and will We thank Transport Focus for this welcome ensure that information is reliable and timely opportunity to partner with them in this research, and also ensure that users are both aware of and look forward to continuing this partnership the benefits of the M4 smart motorway upgrade to enhance the customer experience throughout and have good information during the works. the M4 upgrade. We’ll help road users make informed choices about their journeys and develop better ways to Shaun Pidcock communicate what is happening and when. We’ll Smart motorways programme director improve roadside communications and use other Highways England

2 Introduction

Background

Transport Focus is the independent transport user works road users will experience temporary speed limits, watchdog representing the interests of: narrow lanes, lane closures, occasional overnight and • rail passengers in Great Britain weekend closures of stretches • bus, coach and tram passengers across England of the motorway. outside London Transport Focus has worked in partnership with • all users of England’s motorways and major ‘A’ roads Highways England to research road users’ awareness, (the Strategic Road Network). expectations and experiences of the M4 smart motorway work and the associated disruption to journeys on this key In its work for rail users Transport Focus has studied their stretch of the SRN. Not only will this research be used expectations and experiences during major infrastructure to help enhance the experience for road users during the projects including the rebuilding of Reading station, M4 works, it will also inform the planning and execution of electrification of the Great Western main line through Bath other major Highways England projects in the future. Spa, the rebuilding of large parts of London Waterloo The starting point for the M4 road user research has and the resignalling of Derby station. These works have been Transport Focus’s established ‘model’ for planned disrupted passengers’ journeys with overnight, weekend engineering disruption on the railways. That model has or longer weekday closures, diverted trains, reduced been adapted to suit the challenges – some similar, some timetables, and replacement buses or coaches. quite different – presented by motorway usage (see more Through the course of these projects Transport about the research method on page 11). Focus has developed a proven approach to researching The research programme to date has consisted of both passenger awareness of the works and the inevitable qualitative research (primarily focus groups) to explore disruption they have brought to journeys. Transport Focus drivers’ awareness, understanding and expectations, and research has tracked: how awareness and knowledge quantitative surveys to measure awareness, knowledge builds over time as communications activity increases; the and attitudes in a format that can be replicated in additional use of, and satisfaction with, a wide variety of information waves of research over time. This will allow Transport sources; support for the works; and – ultimately – Focus to track changes in awareness and attitudes – passengers’ experiences during any closure of the railway. potentially driven by changes made to the way the work is Highways England operates and maintains England’s implemented and/or communicated as a result of learnings motorways and major ‘A’ roads, the Strategic Road from each wave. Network (SRN). It has embarked on a programme of works This document covers the initial qualitative research to upgrade the M4 motorway between junctions 3 (Hayes) and the first wave of what is intended to be a multi-wave and 12 (Theale/Reading West)1 into a smart motorway2. tracking exercise to run at intervals until the works are Preparatory work started in 2018 between junctions 8/9 completed. Illustrative quotations included in the report (Maidenhead) and 10 (A329(M)/Wokingham) and the were made by the drivers and fleet managers who project is due for completion in Spring 2022. During the Transport Focus spoke to.

1 See: https://highwaysengland.co.uk/projects/m4-junctions-3-12-smart-motorway/ 2 See the RAC’s explanation of smart motorways: https://www.rac.co.uk/drive/advice/driving-advice/smart-motorways/

3 Upgrading the M4 to a smart motorway – road users’ views

Recommendations

In light of the research summarised in this report Transport in good time – both ahead of the work and as drivers Focus offers the following recommendations to Highways approach any temporary closure. In addition, more England: assistance could usefully be provided to drivers regarding • Awareness of the M4 smart motorway upgrade work is alternative routes (and potentially alternative modes) at an encouraging level but there is scope to do more to available during disruption or closures. ensure individual drivers are made aware of the project • Transport Focus notes a substantial degree of and its benefits, particularly those living some distance misunderstanding about the operation of smart motorways from the stretch of road concerned and/or who use it and a belief among many drivers that hard infrequently. running will be implemented only at peak times. There • Road users are keen to receive information about is also considerable concern about not having a hard the work through a wide variety of channels including shoulder, both in case of breakdowns but also for the roadside signage, news media, mapping tools and apps ability of emergency services to access incidents. Providing as well as social media, information at motorway service more details about the operation of smart motorways – areas (MSAs) and, for businesses, direct contact with and on the M4 in particular – may help to overcome these Highways England. In exploring all of these, Highways issues, along with statistics that demonstrate the safety of England should note users’ particular interest in smart motorways already in operation. receiving information via satellite navigation systems • Having established benchmark levels of awareness of and from the likes of Google Maps and Waze. and attitudes towards the smart motorway upgrade and • Users are particularly concerned to get timely information the works required to achieve it, Highways England is about overnight and weekend closures (including any encouraged to work with Transport Focus to conduct changes to previously published plans). Highways further waves of research and to monitor changes in England should ensure such changes are communicated road users’ awareness and understanding.

4 Key findings

Journey satisfaction

Almost three in five (58 per cent) of the drivers interviewed for this research were ‘satisfied’ with their most recent experience of the M4 with one in five (19 per cent) saying they were ‘very satisfied’. In the qualitative research road users described what makes for a good or bad journey on the motorway. Transport Focus explored many of these areas in the quantitative research. Aspects with which drivers were most dissatisfied were: • having somewhere to go in case of a breakdown (17 per cent) • speed limits (13 per cent) • the quality of the road surface (13 per cent) • speed cameras (12 per cent) • not seeing people actually working (12 per cent) • the width of the lanes (11 per cent).

What makes for a good or bad journey experience on the M4?

Clear roads Poor road surfaces Clear and correct signs/updates Roadworks

Predictable and consistency Other ‘bad’ are important – or ‘careless’ want to know drivers what to expect – GOOD – Accidents ‘Seamless’ and ‘hassle free’ journey – BAD – Heavy traffic

MOTORWAY JOURNEYS

5 Upgrading the M4 to a smart motorway – road users’ views

Awareness of the smart motorway upgrade and potential for disruption

At the beginning of March 2019, half of drivers (51 per cent) claimed to be aware of the M4 smart motorway “ Extensive work in progress with a upgrade work. This is higher among fleet managers (65 per cent) and truck or van drivers (76 per cent). It should 50mph speed limit in force over most be noted that this stretch of the M4 (specifically junctions of the distance, and average speed 8/9, 10 and 11) has been subject to roadworks over a number of years even before the start of the current monitoring cameras. Concrete central programme and that road users may not appreciate which crash barriers are being constructed activities relate directly to the smart motorway work. One third of drivers (34 per cent) claimed to know and gantries are being installed at ‘a fair amount’ about the smart motorway work and six intervals. The work will take around per cent ‘a great deal’; more than four in ten (44 per cent) said they knew ‘just a little’. two years or more to complete.”

“I know that the hard shoulder is being upgraded to a lane to be used at “ That it was planned to improve certain times of the day and that while future traffic flow. Disruptions the work is being carried out there is a to the motorway network and local 50mph speed restriction in place.” road impact assessments.”

When asked what they knew about the M4 work, concerns. A few of the drivers Transport Focus spoke drivers’ top, spontaneous mentions were: to said they would like to see comparative accident • upgrade to smart motorway (17 per cent) statistics for smart and other motorways. • traffic disruption (16 per cent) When prompted to consider various implications • the hard shoulder being removed (13 per cent) of the roadworks, drivers again tended to focus on • the works taking a long time (9 per cent) the negative impacts upon their journeys – increased • improved traffic flow (6 per cent), and journey times (72 per cent), lower speed limits (68 per • provision of an extra lane (6 per cent). cent) and narrowed lanes (52 per cent). They were less inclined to mention specific activities such as rebuilding In drivers’ minds, short-term negative consequences several bridges (29 per cent), working round the clock appear, in the main, to outweigh the ultimate benefits (28 per cent) or limiting significant noise to the daytime that the upgrade is designed to deliver. (16 per cent). Also, there were many mentions of the hard shoulder Transport Focus asked drivers what actions they might removal and worries about what to do in an emergency take to limit disruption to their journeys – just under half and whether this is safe. This echoes what Transport (44 per cent) were not planning to do anything different. Focus has heard in both the M4 qualitative stage and Around a third said they would consider alternative routes other research it has undertaken,3 and suggests that (35 per cent) or travel at less busy times (29 per cent) further efforts are required to inform motorists about the while one in ten (10 per cent) would use an alternative operation of smart motorways and help allay their safety mode such as the train.

3 Notably our report Getting to the heart of smart – Road user experiences of smart motorways (https://www.transportfocus.org.uk/research-publications/publications/getting-heart-smart-road-user-experiences-smart-motorways/)

6 Benefits and support for the M4 smart motorway upgrade

Reduced congestion (38 per cent) tops the list of perceived benefits, followed by faster (35 per cent) and more reliable “ If it leads to less congestion and (28 per cent) journeys. One in five (21 per cent) mention increased driver safety while almost a quarter (23 per cent) faster moving traffic as happened on see no benefits to them personally. the M1 upgrade then it is a good thing.”

“ That the motorway is being upgraded to a smart motorway with the aim “My experience of smart motorways is of reducing congestion and improving that they cause congestion even more journey times.” than they reduce it.”

“ The motorway is being upgraded “I have serious misgivings regarding to allow all lane running and have a the loss of the hard shoulder from the smart, variable speed limit to increase safety perspective of broken-down capacity and improve traffic flow at road users and rescue personnel.” peak times.”

Transport Focus noted in the qualitative research that Half of all drivers interviewed (49 per cent) supported the many drivers instantly and instinctively supported the idea work – rising to seven out of ten fleet managers (70 per of completing the works in the shortest possible time, cent). ‘Opposition’ to the smart motorway upgrade is low seemingly keeping the inconvenience for themselves with nine per cent of drivers saying they ‘tend not to’ and to a minimum. Given the chance to reflect on this, eight per cent saying they ‘do not’ support the work. most concluded that undertaking the work in stages actually makes greater sense; while the disruption and inconvenience may go on for longer, limiting the stretches impacted at any one time and consequently, limiting the length of temporary speed restrictions, provides for less frustration on each individual journey.

7 Upgrading the M4 to a smart motorway – road users’ views

Information channels

Roadside signs are currently the most effective means by mentions (less than 3 per cent of drivers for each) for why which drivers learn about the work (33 per cent). That said, the work is being undertaken, guarantees that the work some drivers say they experience difficulty in absorbing will be completed on time, information on the impact of the lengthier messages: works and how to avoid them, as well as questions about what a smart motorway is, and what to do if you break down where there is no hard shoulder.

“ I’ll be driving along and suddenly I’ll see the word ‘closure’ and then I’m gone, “ When are the various sections and I almost actually need to go back having the most work done? What’s past it to see when it’s actually going the benefit in terms of journey times to be closed, because I don’t know when and congestion? Will it just encourage it’s going to be closed! I don’t have time more traffic and so end up with same to register it because obviously I’m congestion in a few years (like the driving.” M25)?”

Temporary information screens (21 per cent) and overhead gantry signs (19 per cent) are also effective, followed by “A risk analysis of what happens to local media news reports (19 per cent) and word-of-mouth vehicles that break down on a stretch from friends or colleagues (18 per cent). Just six per cent mentioned the Highways England website. of motorway with no hard shoulder.” Looking to the future, one third of drivers (33 per cent) would like to get information through their satellite navigation system, a quarter (26 per cent) through a mapping tool such as Google Maps, and one in five via social media (18 per cent) or through a travel app such as Google’s Waze4 (also 18 per cent). In essence, Highways “ What will the safety impact be - it England should look to utilise almost all available channels may reduce traffic waiting times, but to communicate with road users about the work. At the time of the survey in March 2019, one third of will it really be safe? ” drivers (32 per cent) were ‘fairly satisfied’ and a further seven per cent ‘very satisfied’ with information about the works. There is clearly potential to increase these numbers. Although virtually half of all drivers surveyed (49 per cent) said there was nothing more they wished to know about the smart motorway work, this leaves half open to “Will the works be completed on receiving for more information. time, ahead of schedule, or behind The timescales for the project top the list of desired information (15 per cent of all drivers surveyed), followed schedule?” by information on planned disruption (5 per cent) and the benefits of the scheme (5 per cent). There were lower level

4 www.waze.com

8 Fleet managers

In answer to the question whether the M4 between junctions 3 and 12 currently meets the needs and “ I’m not entirely sure that the requirements of their company/organisation, eight in ten fleet managers (79 per cent) replied that it did, with three upgrade is going to make a big enough in ten saying ‘very much’ so. Just four per cent said it does difference to justify the disruption.” not meet their needs at all. Fleet manager responses generally reflect what they experience themselves as road users and/or what is reported to them by their drivers. Many, particularly in larger organisations, have a somewhat greater focus Fleet managers also have access to a wider range of than drivers on the overall impact and, ultimately, on the information sources than drivers themselves, including benefits to their business of the M4 upgrade. At the same trade bodies such as the Road Haulage Association and time, fleet managers are generally more aware of the Freight Transport Association, as well as direct contact programme and better informed about its benefits and with Highways England. Fourteen per cent of fleet the implications of the works. managers mentioned having heard about the works directly from Highways England and 21 per cent say they would like to receive information in this way. It is notable that in this user group mapping tools, such as Google Maps, top “ It will promote economic growth the list of desired information sources (at 31 per cent). and improve safety.” Coupled with drivers’ interest in such tools, this suggests this is a channel worthy of further investigation.

The M4 is the main strategic route between London, the West of England and

9 Upgrading the M4 to a smart motorway – road users’ views

Seven in ten fleet managers (70 per cent) support the Motorcyclists work, compared with half of drivers (49 per cent), and two- thirds (65 per cent) are satisfied with the information being Transport Focus picked up too few motorcyclists provided (compared with 39 per cent of drivers). While in the quantitative survey to talk authoritatively there are still opportunities to improve fleet managers’ about their awareness or attitudes. In the qualitative awareness and knowledge of the upgrade, these findings research however, they told Transport Focus they suggest that the primary need is to focus on other drivers – feel they have to concentrate more than others probably a harder and more varied audience to address. to stay safe and that narrow lanes and poor road surface through roadworks can be a problem for them. Some mentioned that the narrowed field Disabled motorists of vision caused by their helmet can also limit the information they can take in. Just over one in ten drivers interviewed (11 per cent) reported having a Blue Badge. The responses from these disabled motorists generally reflect the awareness, knowledge and attitudes of all drivers – with a slight tendency to be more positive/knowledgeable. Unsurprisingly, in the light of previous Transport Focus research3, one area where Blue Badge holders show above “ I’ve got that thing in average concern is with the removal of the hard shoulder my head that if you and what they should do in the event of a breakdown or other incident. While Blue Badge holders are generally do break down there’s happy with information about the works, the research no hard shoulder.” suggests that further reassurance would be welcomed that their specific needs in the event of an incident have been considered.

“ Because I am disabled and if I broke down without reaching a designated lay-by, I wouldn’t be able to get out of my car safely.”

10 Research method

This research was undertaken using an approach passengers at stations and on trains so a focus on the Transport Focus has developed over the years to most recent journey is easier to achieve. While this is not measure rail users’ awareness and experience of, as easy to achieve on the motorway, intercepting drivers and attitudes towards, significant infrastructure at MSAs makes it possible to get the ‘in-the-moment’ projects causing planned disruption to train journeys. picture. However, Transport Focus recognises MSA users do not provide a representative cross-section of motorway Transport Focus believes that this M4 research users (in particular, regular commuters may rarely stop at demonstrates that, with some modifications to reflect an MSA). The online element to the research is designed modal differences and journey circumstances, the basic to ensure that a cross-section is obtained. In addition, a approach to capturing users’ awareness and attitudes comparison of the responses from the MSA and the on- is equally valid in a roads context as on rail. line samples has shown that there are few differences in Transport Focus commissioned Populus, an drivers’ responses. independent market research agency, to conduct the This intercept survey was designed to capture the research. ‘in-the-moment’ views of drivers using the M4 at the time The qualitative research phase consisted of nine focus they were interviewed. This ensured that they could focus groups among drivers and six depth interviews with a on their experience on that particular day when everything selection of disabled motorists from three areas along the was fresh in their minds. Transport Focus is conscious and affected section of the M4: Reading, Slough/Windsor and it should be noted that responses from the online survey Hayes. These were complemented by 12 short intercept may in some instances be an aggregation of drivers’ views interviews with drivers from outside the immediate area based on a combination of recent (and not-so-recent) at Toddington (M1) and Leigh Delamere (M4) services. journeys rather than just the last journey. Moreover, their Finally, Populus undertook telephone interviews with last journey on the affected stretch of the M4 may have representatives of six key local authorities. been up to one month ago (London and the South East) The quantitative phase consisted of three elements: or three months ago (drivers from further afield). • a face-to-face, intercept survey at five motorway In total the quantitative survey has canvassed the views service areas: Membury, Chieveley, Reading, Heston of 1176 individuals covering a mix of age and gender as (all on the M4) and Cobham (on the M25); a total of well as various driver types (including car, van, motorcycle, 462 interviews were completed HGV) and disabled motorists. It provides a solid benchmark • an online panel survey with drivers split between against which to measure changes in future waves. London and the South East and further afield; a total This document summarises the findings of both phases of 509 interviews were completed of the research. It draws on three separate presentations • an online panel survey among fleet managers from delivered by Populus which are available on the Transport different types and size of businesses that use the M4; Focus website for those wanting to examine the findings a total of 205 interviews were completed. in more detail: • qualitative research Transport Focus believes that users’ views should be • quantitative research (intercept interviews and online captured ‘in-the-moment’ or as soon as possible after they surveys among drivers and fleet managers) have made a journey. On rail, Transport Focus intercepts • a summary of local authority interviews.

Further research

Transport Focus looks forward to working with Highways England to repeat the research at intervals during the M4 The research agency’s full report can be downloaded works, to monitor changes in user awareness and attitudes at: https://www.transportfocus.org.uk/ and to gauge the effectiveness of communications and research-publications/publications/upgrading- operational activity to benefit the user experience on the the-m4-to-a-smart-motorway-road-users-views M4 while it is being turned into a smart motorway.

11 Contact Transport Focus

Any enquiries about this research should be addressed to: Lee Rowbotham Senior Stakeholder Manager [email protected] www.transportfocus.org.uk

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